Modest Administrative Decentralization in ... - jcl-mena.orgjcl-mena.org/assets/submissions/5.Modest... · Issue 01 JCL-MENA December 2020 86 ... 7 Note that this paper will not tackle

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Modest Administrative Decentralization in Lebanon and Its Expansion Plans

Ghadir El Alayli

ABSTRACT

The paper starts by explaining the notion of administrative decentralization and setting it apart from other

notions. Then, it proceeds to exploring the disadvantages of a narrow version of administrative

decentralization and advantages of an expanded one. The paper outlines next the key proposals and

projects of administrative decentralization in Lebanon in modern history and in the present. The main

features of the administrative decentralization draft law under discussion are then tackled. The paper later

presents notes and recommendations about the mentioned draft law. Also, it gives an overview of the

housing crisis in Lebanon, indicating the role of the sought decentralization in this regard. The paper

concludes with a comparison between expanding administrative decentralization and reforming the

Municipalities’ Law, knowing that both were topics of discussion of the two ad hoc parliamentary sub-

committees shortly before the public protests broke out in Lebanon.

Keywords: local governance; local authorities; municipalities; administrative organization; administrative decentralization; development;

housing crisis.

Ghadir El Alayli is lecturer at Saint Joseph University in Beirut, Lebanese attorney-at-law and consultant and researcher in

human rights, public administration and public policy.

Issue 01 JCL-MENA December 2020

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Contents

Introduction ................................................................................................................................................................. 87

1. Administrative decentralization: notion and advantages .................................................................................. 88

a) Distinction between administrative decentralization and other notions................................................ 88

b) Disadvantages of the narrow version of administrative decentralization .............................................. 92

c) Advantages of expanded administrative decentralization ........................................................................ 92

2. Key projects and proposals for administrative decentralization in Lebanon ................................................ 94

a) Modern history ............................................................................................................................................... 95

b) Status quo ........................................................................................................................................................ 95

3. Key features of the administrative decentralization draft law under discussion ........................................... 98

4. Notes and recommendations about the administrative decentralization draft law .................................... 100

5. Overview of the housing crisis ........................................................................................................................... 102

6. Between expanding administrative decentralization and reforming the Municipalities’ Law ................... 106

BIBLIOGRAPHY .......................................................................................................................................................... 111


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INTRODUCTION

This paper tackles the issue of promoting local governance, which must be given utmost importance from

Lebanese legislators, as it is at the heart of their role to serve the public interest supposedly. Without

generalizing, in light of some relatively successful municipal experiences1, and given the current Lebanese

State crisis2, Lebanon is in dire need of rationalizing local governance and local administration, reviving

democracy and enabling development in its framework, renewing administrative organization and

expanding administrative decentralization. This paper aims at highlighting ways to enhance local authorities

and optimally cater to local needs and interests in Lebanon, in light of the best applicable practices in

comparative law.

The paper 3starts by explaining the notion of administrative decentralization and setting it apart from other

notions. Then, it proceeds to exploring the disadvantages of a narrow version of administrative

decentralization and advantages of an expanded one. The paper outlines next the key proposals and

projects of administrative decentralization in Lebanon in modern history and in the present. The main

features of the administrative decentralization draft law under discussion are then tackled. The paper later

presents notes and recommendations about the mentioned draft law. Also, it gives an overview of the

housing crisis in Lebanon, indicating the role of the sought decentralization in this regard. The paper

concludes with a comparison between expanding administrative decentralization and reforming the

Municipalities’ Law, knowing that both were topics of discussion of the two ad hoc parliamentary sub-

committees shortly before the public protests broke out in Lebanon.

1 For more about the performance of municipalities in Lebanon, refer to: Fouad Gehad Marei, Are municipalities in

Lebanon delivering? Democracy Reporting International, July 2019. 2 For more on precarity (notably economic and financial precarity- even undeclared bankruptcy), refer to : Karim Daher,

Civisme fiscal et engagement citoyen, dans : L’Observatoire de la fonction publique et de la bonne gouvernance de l’USJ-Beyrouth, et Konrad Adenauer Stiftung, Démocratie en crise, Démocratie en mutation, Colloque international, 14 novembre 2019, Beyrouth. 3 Note from the author: The paper was written3 in December 2019 shortly before the outbreak of the coronavirus pandemic and

the declaration of the state of emergency and lockdown that followed. The situation in Lebanon and the world ever since, as well as the consequences on several levels, necessitate careful handling from the central and local authorities alike, and they emphasize once again the pressing need to expand administrative decentralization in Lebanon. The same conclusion applies to the catastrophes caused by Beirut port’s explosion on August 4, 2020. The latter has serious impacts on other issues discussed in this paper too, notably the idea of federalism, and the housing crisis in Lebanon. The original text of this paper is in Arabic and may be referred to on the following link <http://jcl-mena.org/%205.Modest-Administrative-Decentralization-in-Lebanon-and-Its-Expansion-Plans.ar.pdf>

http://jcl-mena.org/%205.Modest-Administrative-Decentralization-in-Lebanon-and-Its-Expansion-Plans.ar.pdf

http://jcl-mena.org/%205.Modest-Administrative-Decentralization-in-Lebanon-and-Its-Expansion-Plans.ar.pdf


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ADMINISTRATIVE DECENTRALIZATION: NOTION AND ADVANTAGES Before delving into the topic, it is important to quickly explain the notion of administrative

decentralization and distinguish it from other notions (in light of comparative law, when necessary), and to

explore the disadvantages of the narrow version of administrative decentralization and the advantages of

an expanded administrative decentralization.

a) Distinction between administrative decentralization and other notions

First, it is important to distinguish between the following technical legal expressions and compare them to

the applicable administrative structure in Lebanon currently4:

First: Administrative decentralization

Administrative decentralization within a united or simple State (non-composite) is based on the Central

State giving some administrative powers to legal, elected units or entities locally, as in in regions, to have a

legal capacity and financial and administrative independence to manage the affairs of each region,

developmentally, economically and commercially.

In the currently applicable Lebanese administrative system5, administrative decentralization is limited to

municipalities led by heads of municipalities and municipal unions led by the municipal union heads.

Municipalities are “local councils elected to manage a specific municipal territory.” Municipal unions are

formed of “several municipalities that decide to unite to facilitate the implementation of common

construction projects and to save on economic and financial expenses.”6

4 For more information about these concepts, refer to the below publications:

ي القانون الدستوري، ج .41-19. وص 41-11. ، ص1991، 3.، ط...، المؤسسة الجامعية للدراسات1. زهير شكر، الوسيط ف

اب، الأنظمة السياسية، ، محمد رفعت عبد الوه ي وت، ص7004الحلب .19 – 14. و ص 14. ، بير

، ط ي ي الدولة الفيدرالية، الحلب ، توزي ع الاختصاصات الدستورية ف ي وت، ص7010، 1.معمر الكبيسبر ، وحول الفيديرالية 104-107. وص 10-14. ، بير

. 114-114.العراقية، انظر صي ، طرئيس الدولة الفيدرالية، ال -عدنان الزنكنة، المركز القانون ي وت، ص7011، 1.حلب . ، وص73-13. ص: وحول الفيديرالية العراقية، انظر. 43 -74. ، بير

.341-314. ، وص11

5 In comparative law, refer to:

Sénat français, La réforme régionale en Italie : Un exemple de décentralisation, novembre 2002, N. GA 41, (France-Italie) ; Sénat français : Michel Mercier, Loi des finances pour 2005, Décentralisation, 2004-2005, N. 74- t.III, annexe 23. 644. وص 39. ، انظر خصوصا ص44-39. ،ص 7004موسى حبيقة وسامر فواز، القطاع العام، مجلس النواب، .


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Second: Deconcentration7

Deconcentration falls under the notion of proportional centralized organization, within the united or

simple State, and it is defined as the central authority’s delegation of tasks to its representatives in different

areas to constitute an extension of it, without their having a legal capacity or financial independence.

However, they have modest administrative independence.

In the Lebanese administrative system that is currently in force, deconcentration is at the level of districts

(qada’) headed by district officers (qaymaqam), and governorates (there were only five governorates in 1959;

then they became six in 1975; eight in 2003; and finally nine in 20178) headed by Governors. The central

authority9 appoints the district officers and Governors.

Third: Political federalism10

In a composite, federal state, which is one state having a Constitution that establishes a federal, legislative,

executive and judicial authority, but is divided into different autonomous States, such that: first, each state

has a local Constitution that does not contradict the federal Constitution; and second, each state has a local

authority composed of legislative, executive and judicial authorities, political federalism is based on the

federation maintaining the defense, foreign affairs’ and monetary issues only within the competence of the

Central State authority exclusively11.

Federalism is not mentioned, neither in the Lebanese law in force12 nor in the administrative

decentralization draft law. The aim behind expanding administrative decentralization is not federalism or

7 Note that this paper will not tackle decentralization of utilities, which is a form of managing public utilities.

8 The nine governorates are: Beirut, Mount Lebanon, Ftouh Keserwan and Byblos, North Lebanon, Akkar, Baalbek-Hermel,

the Bekaa, South Lebanon and Nabatiyeh. 9ي لبنان، مجلس النواب و داريةاللامركزية ال زياد بارود،

وع ف ، الملف مشر ي

ي 71برنامج الأمم المتحدة النمان ين الثان 14-11. ، ص7004، تشر .

10 Chibli Mallat, Federalism in the Middle East and Europe, CWRJIL, Vol.35, No.1, Winter 2003. Compare : François

Crépeau, Droits de l’homme et Etat de droit en Occident, dans: Collectif, dir. Marie-Hélène Parizeau et Soheil Kash, Pluralisme, modernité, et monde arabe, Les Presses de l’Université Laval, Bruylant, Delta, 2001, pp.207-211, which, through studying structural pluralism, analyzes notably federalism and decentralization ; and : Gouvernement allemand, Un aperçu de la Fédération et des Lander, 1997. About the advantages of federalism, refer to : Philippe Ardant et Bertrand Mathieu, Droit constitutionnel et institutions politiques, LGDJ- Lextenso, 30

e Éd., 2018, Paris, p.51 in limine, which

consider that the federal State is more capable of resolving economic and social problems of a modern society that is placed in an international environment where competition is the law 11

ي وط قيامها، ف اهة، بناء دولة الحق والقانون، سلسلة : عصام سليمان، أسس الفيديرالية وشر ي لتطوير حكم القانون والي جامعة سيدة اللويزة والمركز العرن

ي الحقوقية، ط7009-7004ندوات 701-701. ، ص7010، 1.، منشورات الحلب . 12

About federalism and the Lebanese political and constitutional system, refer to:


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political decentralization, rather fulfilling the demand of expanded administrative decentralization, far from

any political federal inclination.

The Lebanese people rejected the option of political federalism, as per the National Accord Document in

the Lebanese parliamentary meeting in Taif city in Saudi Arabia on Oct. 22, 1989, ratified on Nov. 5, 1989.

The accord ended the civil war, otherwise known as “the war for others” (non-Lebanese)13 that broke out

in Lebanon between 1975 and 199014.

Political federalism, which some Lebanese people called for, especially during the aforementioned war, was

also rejected as per the Lebanese Constitution amended in 1991.

Repeated calls for federalism appeared15 (and still appear sometimes16). However, other17 Lebanese people

refuse this option because of Lebanon’s small geography, or for fear of federalism being a prelude to

dividing the country into different States - which was proposed repeatedly but was met with failure.18

Fourth: Partition

In the context of division, there are concerns related to the risk of fragmentation and partition19 of States

into two or more States (this constitutes a fundamental divergence in comparison with federalism under

اهة، مذكور أعلاه، لا سيما ص ي لتطوير حكم القانون والي ، وأوراق كل من زهير شكر، وعصام سليمان، وسليم 70-19. جامعة سيدة اللويزة والمركز العرن

.110-131. ، كما وورقة انطوان نجم، ص704-194. الصايغ، ص13

Une "guerre pour les autres" : Ghassan Tuéni, Refaire le Liban?, Ed. Dar An-Nahar, (article published in the special edition of l’Orient-Le Jour in March 2007), p.7; and by the same author: Jean Lacouture, Ghassan Tuéni et Gérard Khoury, Un siècle pour rien, Albin Michel, 2002, p.185 et s. 14

For more on this war, see: Farid ElKhazen, The Breakdown of the State in Lebanon, 1967-1976, L.B. Tauris, 2000, London, New York.

، الدار العربية للعلوم ناشر 1990-1944عبد الرؤوف سنو، حرب لبنان يد الثان

.7004، 1. ون، ط، المجل

Dorothée Schmid, Guerre(s) du Liban, dans: Encyclopédie de la culture politique contemporaine, dir. Alain Renaut et coord. Claire Demesmay, Pierre Zelenko et Ludivine ThiawPo-Une, Ed. Hermann, 2008, t.I, pp.427-432 ; et : Lucien George, Quinze années de guerre civile, in: Revue Historia, Une histoire du Liban: des Phéniciens à nos jours, hors-série, 2016, pp.80 et 84. 15

Bichara Tabbah, Droit politique et humanisme, USJ- Annales de la Faculté de Droit, LGDJ, 1955, p.XIV et pp.17, 201, 257, 260-261 et 316 ; approved, in fact, by : Albert Chavanne, Nécrologie: Bichara Tabbah, Bulletin de la SLC, RIDC, Vol.24 N.4, octobre-décembre 1972, pp.879-881, cf. p.881. 16

، لم يي عانون

، مني 73/4/7019، 9. التقسيم أو الفيديرالية؟، النهار، ص لا هان . 17

Diane Khair, Unité de l’État et droits des minorités, Etude Constitutionnelle comparée du Proche-Orient, Fondation Varenne, Coll. de thèses, (Soutenue à l’Université Paris II), Vol.56, 2011, pp.31, 96-97, 139, 276 et 393. 18

، النهار، الفي... غسان حجار، مجلس الجنوب ، جدل3. ، ص7019أيلول 71ديرالي . 19

About partition as a right, refer to: Isabelle Chulte-Tenckhoff, in: Alain Fenet (dir.), Geneviève Koubi, Isabelle ChulteTenckhoff, Le droit et les minorités, 2

e éd., Bruylant Bruxelles, 2000, Coll. Organisation internationale et Relations

internationales, 32, pp.78-81.


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which the State remains one and the same). These concerns have increased in the Arab region in general in

the past few years, especially since the term “Arab Spring” was coined. Several Arab States resorted to

partition20 based on conflicts, sectarian, confessional or ethnic considerations21, particularly in Sudan22

when the secession of South Sudan occurred in 2011.

In reality, not by law, a sort of partition prevails in federal Iraq23. There are also serious possibilities to

divide Libya24 where chaos has been rampant since 2011, and Yemen, at least since 2015, after the

unification of its north and south in 199025. Demands for partition have been voiced in several Arab

countries also, like the Arab Maghreb26, from some social components including but not limited to the

Amazigh27.

Moreover, some States28 are marked by precarity, at least at the level of their systems of governance up to

this date, like in Syria29, in the wake of the war that has been draining it internally since 2011. On Sept. 5,

2019, the “establishment of the Kingdom of the Yellow Mountain’’ was “declared’’ as a “sovereign Arab

20

Chibli Mallat, op.cit., pp.1-14, cf. pp.10 et 2; Charles Saint-Prot, Nabil Khoury, Zeina El Tibi et Jean-Yves De Cara, Les risques de désintégration de l’Etat et de séparatisme dans le monde arabe, conférence CEDROMA et OEG, 28 février 2018; The New York Times, www.archive.nytimes.com, 28/9/2013. 21

About these conflicts: Joseph Maïla, Les conflits, in: CPM (groupe d’auteurs), Médiation: Renforcement de la démocratie et de l’Etat de droit, Ed. de l’USJ, 2014, p.136.

، ط ات عربية، رياض الريس للكتب والنشر ي 1.رياض الريس، سيناريو لمستقبل متغير .33و 71-74. ، ص7001، كانون الثان

22 About the history of Sudanese Constitutional Law: Jean Salem, Présentation de la Constitution du Soudan, dans:

CEDROMA, dir. Eric CanalForgues, Recueil des Constitutions des Pays Arabes, Bruylant Bruxelles, 2000, pp.417-427. About the history of civil war in Sudan: Natacha Lemasle, Guerre civile au Soudan, in: Encyclopédie de la culture politique contemporaine, op.cit., t.I, pp.446-450. 23

About the Iraqi Federal State: ا، صالكبيسي معمر

. 114-114. ، وص104-107. وص 10-14. ، مذكور سلف

About sectarian, confessional and ethnic tensions in Iraq: Christophe Kantcheff, in: Farouk Mardam-Bey et Elias Sanbar, Entretiens avec Christophe Kantcheff, Etre arabe, Actes Sud, Sindbad, 2005, Mayenne, p.15. About the history of Iraqi Constitutional Law: Lara Karam, Présentation de la Constitution de l’Irak, in: CEDROMA, dir. Eric Canal-Forgues, Recueil […], op.cit., pp.163-175. 24

About the history of Libyan Constitutional Law in general: Nabil Maamari, Présentation de la Constitution de la Libye, in: CEDROMA, dir. Eric CanalForgues, Recueil […], op.cit., pp.275-290. 25

ي نعمان، هل تنتهي وحدة اليمن؟، النهار، ، قضايا9. ، ص70/4/7019لطف

26 About the history of Constitutional Law in the Moroccan kingdom specifically: Khalid Naciri, Présentation de la

Constitution du Maroc, in: CEDROMA, dir. Eric CanalForgues, Recueil […], op.cit., pp.295-300. 27

Against these demands, refer to: ي لأببحا ودراسة السياسات، طأحمد عزوز ومحمد ، المركز العرن ي ي المجتمع المغارن

104-104. ، ص7011، 1. خاين، العدالة اللغوية ف

28 Compare: Konrad Aenauer Stiftung and the Lebanese Center for Policy Studies, Failed States in the Arab World?,

Roundtable discussions, February 17-18, 2010, Beirut- Lebanon. 29

About the history of Syrian Constitutional Law: Jacques El-Hakim, Présentation de la Constitution de la Syrie, in: CEDROMA, dir. Eric Canal-Forgues, Recueil […], op.cit., pp.385-397.


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Islamic State’’ (before that, the establishment of the Kingdom of North Sudan was declared in 2014, and

another ruler was ordained to govern the area between Egypt and Sudan). This prompts questions about

the possibility of establishment of new Arab States and the creation of different Arab-Arab (inter-Arab)

regional borders in the short or medium-term. Relevant preparations seem to be increasingly underway,

even if their sole aim, for now, is to check such projects’ feasibility.

It is noteworthy that a terrorist organization (the so-called “Islamic State of Iraq and Al-Sham (ISIS)’’) had

occupied several Arab territories, and it even removed the borders between Syria and Iraq in summer 2014;

establishing a so-called Islamic caliphate. However, these areas were liberated by the concerned States, local

resistance factions, regional powers and the international military coalition formed specifically for that

purpose.

b) Disadvantages of the narrow version of administrative decentralization

The limited space for non-expanded administrative decentralization in Lebanon currently has several

disadvantages, mainly: the State’s general disinterest in municipalities and their unions, the central

authority’s use oftentimes of some of the municipalities’ funds and revenues of the independent municipal

fund or its lack of provision of all their resources, the low rate of transfer from the central government to

the municipalities and municipal unions and the low rate of local spending compared to the overall central

spending and to spending in other countries. All this negligence has resulted in negative development and

social, economic and political repercussions, not just locally, but also nationally. Therefore, expanding

administrative decentralization in Lebanon30 is important.

c) Advantages of expanded administrative decentralization

The expansion of administrative decentralization has several advantages31 on multiple levels, which is an

evident idea in comparative law32, including but not limited to facilitating the provision of services to

30

وت، ص7001، 1. جدلية التنمية والديمقراطية، دار المواسم، ط: يات لبنانمحمد مراد، بلد. زياد بارود، مرجع سالف ذكره .704-141. ، بير ، المديرية العامة للدراسات والمعلومات، مصلحة الأبحا والدراسات ي

ي لبنان، : مجلس النواب اللبنان ساندي طانيوس، تعديل قانون البلديات ف

71/17/7014 . ، التقسيمات ال الشامي

وت، ص1.، ط7004النموذج الأفضل للبنان، : دارية والانتاابيةعلي حسير .144-110. ، رشاد برس، بير31

About the advantages of decentralization in general, see: .43و 17-4. ، ص7011لبنان، اللامركزية الدارية، -وزارة الداخلية والبلديات. 41-19. ، صأعلاهزهير شكر، مذكور

32 See for instance (but not limited to):


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citizens and people in general and meeting their needs locally; communicating amongst each other and with

the public administration; cementing the feeling of belonging to the local community, especially through

fostering the role of youth, minorities and women; reducing administrative bureaucracy and routine work;

boosting local representation, social justice, partnership and engagement in local governance; ensuring

opportunities to achieve the right to access information; developing the performance of public

administration; enhancing the capacities of local administrations; guaranteeing coordination between

decentralized authorities and the official central institutions, especially ministries; and consolidating the

human resources’ (employees) capacities and competences in the public administration.

In addition to the abovementioned advantages, expanding decentralization boosts transparency,

accountability and liability, knowing that these goals are at the heart of the demands of the Lebanese

popular uprising that broke out on Oct. 17, 2019 against the ruling class with all its components33. The

uprising objected to the rampant corruption, the bad economic and living conditions and the absence of a

serious plan and actual reformative public policies to address the unsettling financial crisis that has been

taking its toll on the country since months. Notably, the uprising per se was decentralized. The protests

and sit-in squares were not limited to the capital’s downtown area, with Lebanese people flocking to it

from other cities, as it was the case in massive protests on national occasions in the past. This time,

protests filled numerous Lebanese cities and towns. Citizens even moved from one area to another to

protest in cities and villages other than the ones they hail from or live in to directly communicate with their

fellow rebels and share personal experiences with them.

Expanded administrative decentralization also contributes to boosting economic success chances, like in

the US, India and Belgium, and promoting the cultural, social and urban growth of society. Moreover, it

develops the different rural areas and cities equally, as per the Lebanese Constitution, since decentralization

ي تونس، ا

. 9-4. ، لا سيما ص7014لمنظمة الدولية للتقرير عن الديمقراطية، دليل السلطة المحلية ف

Also, about the French experience during the late 20th

century, see: François Mitterrand, dans: Collectif, dir. Dominique Colas, Travaux de la Mission sur la Modernisation de l’Etat, L’Etat de droit, PUF, 1987, Paris, p.XVIII. 33

About the current Lebanese revolution and the related developments, see: يات المر

ين وتحد ي 74حلة النتقالية، جلسة نقاش، معهد عصام فارس والمؤسسة اللبنانية للسلم الأهلي الدائم، انتفاضة تشر

ين الثان ، معهد عصام 7019تشروت فارس، بير

L’Observatoire de la fonction publique et de la bonne gouvernance de l’USJ-Beyrouth, et Konrad Adenauer Stiftung, op.cit. ين اللبنانية، ي انتفاضة تشر

، تأملات ف ين 74ناصر ياسير وت7019الأول تشر .، معهد عصام فارس، مقالات الرأي، بير

ي 30من الأزمة إل الحكم الرشيد، ندوة : المنظمة الدولية للتقرير عن الديمقراطية، خطة الصلاحين الثان وت7019تشر .، بير

André Sleiman, A Moment for Change, December 2019, Democracy Reporting International. ، غدير ا ي 70ثائر، النهار، " رافعة وطن"لعلايلي

ين الثان . ، مني 9. ، ص7019تشر، عساه يكون، النهار، ي 79غدير العلايلي

ين الثان .، مني 9. ، ص7019تشر


94

is a unified and comprehensive development plan that aims at optimally providing resources to all regions,

in the hope of achieving sustainable development34. The desired demand helps curb the migration of rural

folk to cities and the overcrowding in Beirut specifically, and it also contributes to solving the local housing

crisis35.

Expanded administrative decentralization increases the chances of political and democratic success, as it

prevents, for instance, a competent minister from using the rights of municipalities financially as a

“political tool” that (s)he threatens with, whenever the need arises36. The expansion of administrative

decentralization also prevents members of parliament from offering public services to citizens as though

they were personal interests and partisan or sectarian favors, although they are fundamental rights.

Expanded administrative decentralization also contributes to bolstering public safety and stability,

improving public spaces, developing infrastructure, organizing transportation, curbing traffic bottlenecks

and improving the suffering public transport sector. It also helps elevate the sectors of education and

teaching, hospitals and nutrition, and contributes to rationalizing the management of environmental issues,

especially waste. If the Lebanese legislator designs an administrative decentralization law, which places

national affiliation above all sectarian and confessional considerations, the legislator would be helping

reduce sectarianism and confessionalism, which Lebanon still suffers from, and overcome these two vices,

even if in the middle or long run37.

KEY PROJECTS AND PROPOSALS FOR ADMINISTRATIVE DECENTRALIZATION IN LEBANON

The scope of this paper does not allow to explore the administrative division that was in force in the past

and shortly after Lebanon’s independence in 1943; when the State of Greater Lebanon was established in

1920; and even before that, under the two district officers’ system between 1842 and 1861; during the

34

About the advantages of administrative decentralization especially in terms of achieving development, see: ، العدد اللامركزية الداريةان، عصام سليم ي

ي اللبنان www.lebarmy.gov.lb ،7007، نيسان 10والنماء المتوازن، مجلة الدفاع الوطب

And publications of the Democracy Reporting International in Lebanon in Arabic and English, specifically those published in 2017 (www.democracy-reporting.org). 35

See Section 5 below herein. 36

Georges Corm, La participation citoyenne au niveau local passage obligé pour une participation nationale, dans : L’Observatoire de la fonction publique et de la bonne gouvernance de l’USJ-Beyrouth, et Konrad Adenauer Stiftung, op.cit. 37

ي ل ي المؤتمر الصحف

عاتها" جمعية اللامركزية والنماء، ممثلة برئيسها المحامي فادي بركات ف

ي " إطلاق أعمال الجمعية وتطل

ي مؤسسة 17/17/7017ف

، ف

.عصام فارس، لبنان

http://www.lebarmy.gov.lb/


95

mutasarrifate era between 1861 and 1914, or under the French Mandate between 1920 and 194338. It is

noteworthy that the first local council was established in the capital Beirut in 1833, but its functions were

limited to guarding, lighting and cleaning. Then, a municipal council was established in Deir el-Qamar

(Chouf) in 1864, and municipalities later multiplied, notably after the country’s independence39.

This paper explores key projects and proposals of administrative decentralization in Lebanon in modern

history and in the present.

a) Modern history

During the first and middle parts of the 20th century, more interest was attributed to administrative

decentralization, especially in the days of President Fouad Chehab in 195940, according to a French study

that divided Lebanon into 20 administrative units41, and even before that, under President Emile Eddeh. In

our modern times, since peace was restored in Lebanon in 1990, projects and draft laws have been

proposed regarding administrative decentralization in the following chronological order:

In 1995, late MP Auguste Bakhos proposed a draft law to amend the administrative organization law. In

1997, the sub-committee of the Administration and Justice Committee put together a draft law related to

administrative organization and decentralization. In 1999, the government of PM Salim al-Hoss presented

a draft law and referred it to parliament as per decree no. 1066. In 2001, the Minister of Interior and

Municipalities Elias al-Murr presented a draft law about administrative organization and decentralization.

In 2007, MP Robert Ghanem, head of the parliamentary committee for law modernization, presented a

draft law about administrative decentralization.

b) Status quo

The preamble of the Lebanese Constitution states that “Lebanon is a final homeland for all its citizens. It is

unified in its territory, people and institutions,” and that “the Lebanese territory is one for all Lebanese.

38

For studies about the history of establishment of the Lebanese State, in general, see: اهة، ي لتطوير حكم القانون والي ا، لا سيما ورقة الأب بولس نعمان، صجامعة سيدة اللويزة والمركز العرن

.111 – 94. مذكور سابق

3911موسى حبيقة وسامر فواز، مذكور أعلاه، ص .

40 Georges Corm et Ziyad Baroud, dans : L’Observatoire de la fonction publique et de la bonne gouvernance de l’USJ-

Beyrouth, et Konrad Adenauer Stiftung, op.cit. 41

.جمعية اللامركزية والنماء، مذكور أعلاه


96

Every Lebanese shall have the right to live in any part thereof and to enjoy the rule of law wherever (s)he

resides. There shall be no segregation of the people on the basis of any type of belonging, and no

fragmentation, partition or settlement of non-Lebanese in Lebanon42.”

Article 1 of the Constitution states that “Lebanon is an independent, indivisible and sovereign State.”

Article 3 states that “the boundaries of administrative areas may not be modified except by law.” Reference

shall be made here to the Legislative Decree no. 116, dated 12/6/1959 related to administrative

organization.

The aforementioned National Accord Document stipulated several reforms including administrative

decentralization and set forth verbatim:

‘’1- The State of Lebanon shall be a single and united state with a strong central authority.

2- The prerogatives of the Governors and district administrative officers shall be expanded and all State

administrations shall be represented in the administrative provinces at the highest level possible so as to

facilitate serving the citizens and meeting their needs locally.

3- The administrative division shall be reconsidered in a manner that emphasizes national fusion while

preserving coexistence and unity of the soil, people, and institutions.

4- Expanded administrative decentralization shall be adopted at the level of the smaller administrative units

(district and smaller units) through the election of a council for every district, headed by the district officer

to ensure local participation.

5- A comprehensive and unified development plan capable of developing the Lebanese provinces

economically and socially shall be adopted and the resources of the municipalities, unified municipalities,

and municipal unions shall be reinforced with the necessary financial resources.’’

On 7/11/2012, the Prime Minister issued decision 166/2012, as per which a committee to prepare an

administrative decentralization bill was formed43. In 2014, the said committee put together a bill, which the

parliamentary sub-committee’s draft law currently derives from. The said ad hoc sub-committee for

42

What is meant here mainly is the settlement of Palestinian refugees in Lebanon. 43

Spearheaded by former Minister of Interior and Municipalities Attorney Ziyad Baroud.


97

administrative decentralization emanates from the joint parliamentary committees. During the two past

years, it was amending the bill in order to ratify it as a draft law44.

Just like the ministerial statements issued by the successive Lebanese governments since the Taif

Agreement, the ministerial statement of the current outgoing caretaker Lebanese government (following

the current revolution/uprising) that was read out on Feb. 12, 2019 stipulated the expansion of

administrative decentralization. In one of its clauses, the statement declared verbatim: “The government

shall commit to continuing cooperation with the parliament to resume work on ratifying the administrative

decentralization law.”45

According to relevant laws and regulations in force, the Lebanese Republic is a unitary state that follows

deconcentration and decentralization, and its government is based in the capital Beirut. The Lebanese

territories are divided into nine governorates that are themselves divided into districts, except for Beirut.

Municipalities cannot be considered part of the divisions within the districts, and they are not part of

deconcentration either. Along with the municipality unions, they constitute the only form of administrative

decentralization so far46.

44

What is mentioned in this paper does not express in any way the opinion of any member of parliament in the mentioned sub-committee or the opinion of the latter which was still researching, examining and discussing the content of the draft law under preparation. The parliamentary committees’ sessions, their work, minutes, discussions and voting are all confidential (unless the committee decides otherwise). For more information about the work of the ad hoc sub-committee, see: https://www.lp.gov.lb/ViewContentRecords.aspx?id=1121 . 45

Between Feb. 12 and 16, 2019, the Lebanese parliament tackled administrative decentralization during the discussion of the aforementioned ministerial statement. For example, MP Samir al-Jisr (the parliamentary Future Movement) said that the ministerial statement outlined a roadmap to address problems through proposed reforms regarding the CEDRE* conference, which he supports. He noted that “the statement has some gaps, since the administrative decentralization project requires support to ratify it and enforce it. The Lebanese people want this project to be an introduction to equitable development.” He asserted that “equitable development is based on fair spending, and development aims to serve humans and provide them with a bundle of services.” MP Ziad Hawat (representing the parliamentary Lebanese Forces’ bloc), for instance, said, “The government has reiterated in its ministerial statement its pledge to ratify the administrative decentralization law. We demand that Joubeil (Byblos) be included on the map of development and projects, including infrastructural and development projects, as former PM Saad ElHariri had promised us. We have several demands in this regard.” *CEDRE: (Conférence économique pour le développement du Liban par les réformes et avec les entreprises), which France hosted in Paris on April 6, 2018, to support the Lebanese economy. 46

For a statistical study about how to implement decentralization in Lebanon effectively, see: ي المركز

ي لبنان، كتيب، اللبنان .7011للدراسات، حول اللامركزية الدارية ف

https://www.lp.gov.lb/ViewContentRecords.aspx?id=1121


98

KEY FEATURES OF THE ADMINISTRATIVE DECENTRALIZATION DRAFT LAW UNDER DISCUSSION

According to the draft law that the ad hoc parliamentary sub-committee is currently working on,

administrative decentralization shall be expanded at the level of municipalities and districts as decentralized

units led by elected local councils and having a legal capacity as well as both administrative and financial

independence, in addition to enjoying wide privileges. Local councils shall include municipal councils,

District Councils and Beirut’s own city council since it is the capital and has a special standing, provided

that diversity, plurality and participation of all social components are maintained, and Lebanon is divided

administratively into governorates.

As per the draft law, municipal unions shall be dissolved, and cooperation shall be limited to certain

municipalities only i.e. intercommunality, when need be47.

The draft law aims at promoting the single and unitary state with a strong central authority stipulated in the

National Accord Document, provided it is represented in the country’s regions according to the

deconcentration system.

In its preliminary version that is still under study and discussion within the sub-committee, the draft law

sets forth that the electoral bodies in the cities and villages of the district shall elect the General Assembly

of the District Council, which in turn elects the District Board. The General Assembly is formed of

representatives whose number ranges according to the number of people registered in the city or village

and the number of district inhabitants who previously asked to be registered. The General Assembly

47

About this topic in comparative law, see: Rémy Le Saout, L’intercommunalité : vingt ans de développement et des interrogations, Métropolitiques, 15 Rémy Le Saout, L’intercommunalité : vingt ans de développement et des interrogations, Métropolitiques, 15 octobre 2012. URL : http://www.metropolitiques.eu/L-intercommunalitevingtans-de.html; Olivier Thomas, Intercommunalité française et hausse de la pression fiscale : effet collatéral ou stratégie politique délibérée ?, Revue française d'administration publique, 2008/3 n° 127, pages 461 à 474 ; Chris Game, The future is Intercommunality - yes, but with whom?, 01/12/2014, https://inlogov.com/2014/12/01/the-future-is-intercommunality-yes-but-withwhom/; Stéphane Cadiou, L’intercommunalité ou les promesses déçues de la démocratie locale, Métropolitiques, 19 octobre 2012. URL : http://www.metropolitiques.eu/Lintercommunalite-oules.html; Stéphane Cadiou, translated by Oliver Waine, “Intercommunality, or the broken promises of local democracy”, Metropolitics, 16 January 2013.URL: http://www.metropolitiques.eu/Intercommunality-or-the-broken.html; Gérard-François Dumont, France : intercommunalité ou « supra-communalité » ?, Population & Avenir, nov.déc. 2018, N.740, p.3, https://www.population-et-avenir.com/collection-2018/population-avenir-n740- novembre-decembre-2018/; Nicole Maurice and Clara Braun, Intercommunality : The success story of CODENOBA, Argentina, UNESCO, 2005: http://digitallibrary.unesco.org/shs/most/gsdl/collect/most/index/assoc/HASH0137.dir/doc.pdf; Fabien Desage et David Gueranger, L’intercommunalité, les maires et notre démocratie, Métropolitiques, 24 avril 2013. URL : http://www.metropolitiques.eu/L-intercommunalitelesmaires-et.html


99

authorizes some decisions of the board and puts them to a vote of confidence, in addition to forming

advisory committees. The District Board, which manages the district’s affairs within its scope, is composed

of 12 members, including the board director and his deputy. The board has executive tasks, and its

functions are general in nature or serve public interest. It issues regulations and offers recommendations of

public interest, as well as remarks and proposals.

In a nutshell, the District Council is formed of the General Assembly and the District Board. Regarding

deconcentration, the Governor, according to the draft law, is the link between the regions and the center.

Sub-prefectures and their apparatuses, as well as the function of district officer are eliminated, in violation

of the related provisions in the National Accord Document, and the prerogatives of the district officer (an

appointed employee) are transferred to the District Council (elected).

Given the particularity of the capital, which is a melting pot for all citizens of different backgrounds, the

draft law, in principle, notes the establishment of the Beirut City Council, provided it includes a General

Assembly and a board of directors. As per the preliminary version of the draft law, Beirut shall be

considered one constituency in principle. The General Assembly of the Beirut City Council shall be elected

by the electoral bodies and formed of 72 members, provided that 6 of them are reserved for Beirut’s 12

historical neighborhoods. Those six include 5 representatives of the registered people, and one

representative of the residents. The Beirut City Council shall have a special situation and shall be elected

directly by the electoral bodies, unlike in other districts where the General Assembly elects the board of

directors. Thus, the local authority, without exception, in the capital would be based on public elections.

The Beirut city Governor would be the representative of the central authority in the Beirut City Council.

Moreover, the draft law boosts transparency and limits auditing; constraining it to post-audit rather than

pre-audit. A Decentralized Fund shall replace the currently applicable Independent Municipal Fund. The

members of its board of trustees shall be elected, and it shall work according to systematic rules and

distribution criteria based on aforementioned objective indices that cater to the importance of equitable

development and encouragement of local growth48. The draft law sees to the establishment of: the Ministry

of Local Governance (the current Ministry of Interior and Municipalities shall become the Ministry of

48

Compare: Special Committee on Administrative Decentralization (Lebanon), Report and Draft Bill for administrative decentralization, 2014.

ي لبنان، كتيب، ي للدراسات، نحو لامركزية إدارية موسعة ف

.7011المركز اللبنان


100

Interior only), the partnership apparatus between the District Councils and the private sector, a disciplinary

committee for the District Councils, the statistics apparatus, the local governance apparatus, the

information technology apparatus and the traffic safety apparatus.

The draft law invokes many recommendations and remarks that cannot be detailed here, but below are

some of them briefly.

NOTES AND RECOMMENDATIONS ABOUT THE ADMINISTRATIVE DECENTRALIZATION DRAFT

LAW

Below are some notes and recommendations that can be proposed regarding the administrative

decentralization draft law:

One of the technical and logistic difficulties in local elections is the absence of a detailed housing map and

official census of registered inhabitants and of residents (as well as houses)49, and in general, the lack of

digital data and official statistics. It is important not to undermine the role of the Independent National

Elections’ Commission to ensure transparent and democratic elections. It is also necessary to reduce the

age of candidacy for the membership of the General Assembly of the District Council to 18 years to

promote youth participation and representation, in line with the spirit of the law in other issues and

articles. On those same grounds, we believe it is necessary to remove the university degree requirement for

accepting candidacy to the membership of the board.

The financial aspect is another main hurdle delaying the ratification of the draft law. On the one hand,

ensuring the minimum financial independence by boosting financial resources that local authorities need in

their work is necessary to empower them to best perform their tasks. On the other hand, the financial

burdens to meet local needs are huge. For that reason, the legislator has to be cautious before ratifying the

provisions of a decentralized fund to avoid problematics like those related to the bitter experience of the

Independent Municipal Fund that is currently still in force. Undoubtedly, stopping squandering and

fighting corruption, which are the demands of the current revolution, are among the foolproof ways to

49

ي لبنان، إدارة الحصاء المركزي، ولارا بدر،نجوى يعقوب خصائص السكان والمساكن ف SIF .7017، نيسان 7، العدد


101

overcome this obstacle. Evidently, reform and integrity are linked to decentralization, and the opposite is

true. These two demands constitute a virtuous circle.

In fact, financial decentralization, which is under consideration, brings up thorny issues in the Lebanese

experience, such as the composition of those finances and their sources, the management of funds of the

prospective decentralized fund, the rules and principles of accountability, the financial control of local

administrations and the role of the Court of Audit50. Other issues include how to design and manage

transfer systems and settlement payments, as well as decisive factors that should be taken into account

when dealing with financial and institutional effects that might arise from the desired reforms on the state

treasury and taxpayers. Regarding partnership provisions between the District Councils and the private

sector, ideally and unlike the draft law, private partners should be limited to national rather than foreign

entities. This recommendation aims to increase the chances of Lebanese companies or company

conglomerates, except for exclusively specific cases like lack of competition, specialization or competence

among Lebanese companies or conglomerates in the relevant sector or field.

The draft law also necessitates activating the role of civil society organizations and engaging them with

decentralized authorities51, as the two are complementary in achieving public interest. Those organizations

shall have an advisory, non-binding opinion, solely for the purpose of deliberations and listening to

community needs and practical proposals regarding sector-specific or certain issues, like urban planning,

environment, health, culture, women’s rights, children’s rights, youth, the rights of people with special

needs, social research, etc. This activates the role of local councils and boosts their effectiveness52. The

enhancement of the electronic and modern aspect of administrative “paperwork” is also required to

facilitate it in the era of mechanization, globalization and e-governments. Lebanon largely lacks this

aspect53, and the draft law tasks the government with putting a plan to address this gap.

50

On these topics, see: . 7014، 7. هادي الديك، بلديات لبنان بير الرقابة والتوجيه، المجموعة الطباعية، ط

51 ، .11-14. ، ص7011منتدى الشباب الاقتصادي، مني الصلاحيير

52 Compare to the status quo. For instance in 2011, a department dubbed the “municipal observatory” was created in

Lebanon as part of the cadre of the Directorate General of Local Administrations and Councils in the Ministry of Interior and Municipalities, as per decree no. 6481, issued on Oct. 8, 2011. It aimed at assessing the performance of municipalities to develop them through following up on the work of local authorities and extracting numbers, data and inclinations. But the said observatory was not effectively implemented, and anyway as conceived by the said text, it lacks independence and transparency as well as competence in the development field. Besides, it does not include any civil society representatives. See:

ي 10جمعية المفكرة القانونية، ين الثان ي شيرة السلطة، " الأرقام": "البلدي المرصد "، 7011نوفمي /تشر

agenda.com-https://mail.legalف

53ي ا

، لبنان7019إنماء متوازن أم أزمة جديدة؟، حزيران : لحر، اللامركزية الدارية الموسعةمؤتمر التيار الوطب .


102

An article should be added to the draft law, indicating that the expanded administrative decentralization

system is based on the principle of delegation of power54 to achieve public interest, whereby elected local

councils are given the widest possible scope of prerogatives as per the provisions of the said law and other

applicable laws that do not contradict the provisions thereof. It is also hoped that the proposed

administrative organization will not need to, as much as possible, cater to the nature and requirements of

the sectarian political system and the particularity of the composition of the “Lebanese formula” at the

expense of the ultimate constitutional goal of overcoming sectarianism. Decentralization should serve this

end, not the contrary. Through legislation, the legislator shall improve the community situation, rather than

wait for the community to improve in order to mirror it legislatively. In any case, the demands of the

current popular revolution indicate the emergence of a popular awakening to reform the Lebanese system

in general.

The topic of administrative decentralization triggers talk about other necessary reforms that are also

important and delicate, like the situation of stateless55 people who, despite being “original” residents of a

certain city or village in the district, remain deprived of their right to citizenship since dozens of years, and

consequently, of their right to vote and participate in local representation and governance. This also applies

to the children and husband of a Lebanese woman married to a non-Lebanese56. However, each of these

issues deserves a separate law and a legislative workshop.

OVERVIEW OF THE HOUSING CRISIS

Going back to the abovementioned advantages of administrative decentralization57, it could be said that the

latter contributes to resolving the housing crisis, and this idea will be further elaborated in the current

54

“EdaraBiMahalla” campaign, joint statement about administrative decentralization. Compare the principle of subsidiarity, in the European Community Law, for instance : Communautés Européennes, Au service de l’Union Européenne, 2

e Ed. 1999, pp.30-31; Christian Engel, Comité des régions, dans: Werner Weidenfeld et

Wolfgang Wessels, L’Europe de A à Z: Guide de l’intégration européenne, Communautés Européennes, 1997, pp.38-40; Carles Gasòliba I Böhm, Les régions et la construction européenne, Chaire Jean Monnet- Université de Montréal, 1995, pp.7-8 et 17; Céline Stehly, L’Union Européenne infranationale, Petite fille deviendra grande?, Chaire Jean Monnet- Université de Montréal, 1996, pp.7, 13, 18-31; Henri de Bresson, Le traité en 40 questions, série: 11 avril - 20 mai 2005, www.lemonde.fr, N.21 et: Agnès Fontana, Le Comité des Régions de l’Union Européenne, dans: Encyclopédie de la culture politique contemporaine, op.cit., t.II, pp.171-174. 55

For a new book about this topic, see: ي أروقة المحاكم اللبنانية، جمعية رو

ز، جنسية قيد القضاء، رحلة عديمي الجنسية ف وت7019اد فرونتير .، بير

56 Ghadir El Alayli, Le droit de la femme libanaise d’accorder sa nationalité à ses enfants, HBDT, juin 2015.

57 In the first part of this paper, specifically in paragraph (C) and in footnote 38.


103

section. This issue is among the main advantages resulting from decentralization, and it is pivotal, especially

amid the deteriorating and fragile situation in Lebanon, economically, financially and socially.

In fact, Lebanon has been facing several crises for years, and they have piled up, one after the other, and

recently erupted with the popular revolution. The bad public policies adopted by the Lebanese state can be

considered one of the main problems, as the state slackened in performing its social role and function, thus

leading the country to the brink of a social explosion. These policies are evident especially in the housing

issue, knowing that such a sensitive social crisis cannot be addressed in separate texts, like the “new” rent

law, or by solving the housing loans’ problem only. A more comprehensive way of approaching the matter

is needed.

The Lebanese Constitution explicitly guarantees the right of property, as it clearly states in its Preamble

that “the economic system is free and ensures private initiative and the right of private property.” In Art.

15, it states that “rights of ownership shall be protected by law. No one's property may be expropriated

except for reasons of public utility, in the cases established by law and after fair compensation has been

paid beforehand.” The right to suitable housing is also guaranteed in international charters and treaties that

the Constitution refers to and that have become part of it. These are two complementary rights that should

not conflict or clash, as in the case of the ratification of the exceptional rent laws and the “new” rent law,

which works on liberalizing the former gradually.

The Lebanese legislator’s decisions over the years in terms of housing, especially regarding old rents, have

bred a lot of social hatred and tensions58. Meanwhile, the State’s main function should be promoting social

harmony and instilling social justice, solidarity and synergy.

Many ideas and proposals were made and published to solve the housing crisis in Lebanon, but the best

solution, in our opinion, is to continue acting to avoid what awaits Lebanese society in a few years, when

“the old tenants” will be on the streets. This is an exact socio-legal problematic, and to achieve the right

balance between the relevant basic rights, the State should fully assume its responsibilities. This can be

done through devising a comprehensive and integrated housing plan59 that includes public policies

58

Ghadir El Alayli, Le droit naturel, fondement de l’État de droit panarabe, Ed. A. Pedone, Paris, prévu en octobre 2020. 59

It was mentioned during the discussion of the new rent law (at the time) by MP Nadim Gemayel (The Phalangist parliamentary bloc).


104

stemming from good governance and wise management to face the housing crisis in all its aspects and

dimensions (social, legal, developmental, reconstructive, administrative, urban planning, transportation,

financial and banking incentives and facilities). The housing problem must be addressed, especially amid

the escalating crisis given the worsening Syrian displacement to Lebanon (in addition to the Palestinian

refugees and camps and the Iraqis, among others), and in the wake of the deteriorating financial and

economic situation in the country since the end of 2019.

In comparative law, there are relevant notions like “reasonable housing” (in India, for example) and

“adequate housing” (in Europe, for instance). These principles oblige the state to provide protection and

safety for society based on certain criteria, especially in terms of covering all related circumstances. The

latter include the situation of the elderly, people with special needs and children, including orphans, the

vulnerable and families with women as breadwinners (India), and ensuring the right to public housing

(USA)60.

Several recommendations can be made in this regard, such as restructuring financial support offered by the

Banque du Liban (BDL) to buy housing property, reviewing the tax system (two key demands of the

current revolution), activating urban organization and planning, amending or at least preventing the

violation or circumvention of the law on foreign acquisition of real estate in rem rights in Lebanon. We

also recommend61 launching suitable, decent and motivating housing projects/public housing to social

categories that are mostly in need, including low-income individuals, youth and elderly, provided the

housing units are ready at the time of “forced displacement” or even “homelessness” of “old tenants”. The

projects or units should also ensure the organization of slums and the achievement of equitable

development, all the while promoting the role of local authorities, urging sects and associations to provide

lands (especially communal lands “mousha’” and endowments “awqaf”) to build the desired housing

compounds, and facilitate access of low-income individuals to affordable housing.

Decree no. 8198, dated 24/5/2012 (draft bill) must be ratified in order to amend law no. 767, dated Nov.

11, 2006 and related to rent-to-own leasing targeting low-income individuals specifically and ensuring

60

ي اثباتا لحق السكن، اتيج ي الاسي . ، العدد الرابع من مجلة المفكرة القانونية4/4/7017لم كرامة، التقاض

61ي السكن، سل: انطوان شمعون، الاطة الوطنية لحقوق النسان

لجنة حقوق النسان النيابية وبرنامج الأمم -سلة الدراسات الالفية، مجلس النواب الحق ف

، ي.7004المتحدة النمان

ي الاطة الوطنية لحقوق النسان" حق السكن"، لايلي غدير الع ، العدد الرابع من مجلة المفكرة القانونية، نيسان ..التاطيط بعيدا عن اشكاليات الحاصر : ف

7017.


105

housing units at low prices. This has become a pressing and necessary need, given the tough economic,

financial, banking and social situation in Lebanon and the recent rise in unemployment. The

aforementioned draft bill aims at giving incentives (in which the Sstate, the private sector and banks

participate) to the investor selling a housing unit to a low-income tenant specifically through rent-to-own

lease, notably by exempting the tenant from several charges.

It is also pressing to issue implementation decrees for the Construction Law and Rent-to-Own Lease,

which defines a rent-to-own lease as a lease that grants the tenant the right to own the leased premises in

exchange for a fee agreed upon when concluding the lease, after deducting the paid installments in rent

from the total price. The duration of the rent-to-own lease shall not exceed 30 years, and the tenant cannot

use his/her right to buy the leased premises before five years at least have passed from the lease. During

the 30 years or upon their completion, the tenant shall have the right of choice to transfer the lease into

ownership.

If the competent authorities continue to ignore the legitimate public rights and recommendations about

consecrating the right to housing, on the one hand, and protecting the right to property ownership, on the

other, vertical social confrontations and divisions might aggravate and threaten the Lebanese civil and

social fabric62. It is noteworthy that the last provision of the “Proposed Preliminary Reform Measures to

Face the Crisis” paper issued by the economic meeting held in the Presidential Palace in Baabda on Sept. 2,

2019 had underlined, under the clause of social policy that aims at providing protection for all social

groups, the importance of putting a housing policy based on the right to housing, and not limited to

encouraging ownership.

The aforementioned recommendations about the housing crisis have voluntarily gone beyond the main

topic and scope of this paper. Once again, expanded administrative decentralization is enough to

contribute to ensuring provision of the right to housing practically, as per the local needs and reality of

each region. However, even under the current applicable Lebanese laws, hence under the limited

administrative decentralization, the municipal council handles the establishment of public housing,

provided this step is ratified by the Governor. The municipal council can manage the housing units

62

، مركز الدراسات الحقوقية للعالم 7011أيار 1كسبار، جوزف زغيب، أنطوان كرم، ندوة حول قانون اليجارات بير المفهوم والحسنات والسيئات، اصر ن ي .العرن


106

personally or through an intermediary, or can contribute to or help in executing them, according to the

provisions of the Municipalities’ Law63. The latter will be tackled in the last section of this paper.

BETWEEN EXPANDING ADMINISTRATIVE DECENTRALIZATION AND REFORMING THE

MUNICIPALITIES’ LAW

The ad hoc parliamentary sub-committee was seeking to adopt the administrative decentralization law

proposal before the end of 2019 by achieving a national consensus on such a “development project” that

would unite the parliamentary blocs representing the various political forces. This is regardless of these

forces’ views on political matters in their narrow sense. The sub-committee wanted the demand for

expanded administrative decentralization to override secondary differences, let alone considerations related

to factions and parties. In fact, it expressed its will to achieve local interests and the general national

interest.

However, this deadline will inevitably be extended for two reasons: First, sub-committee members

representing parliamentary blocs have yet to agree on several contentious terms. Chief among these is the

financial aspect of the decentralization and the peculiar status of the capital, Beirut. Second, they have yet

to reach an agreement on the political, security and logistic levels due to the outbreak of the popular

revolution. Of note, the Parliament’s General Assembly has been unable to meet for over a month due to

street pressure, and the parliamentary committees’ priority is currently the draft laws that the

revolutionaries are demanding as a way out of the financial and political crises plaguing the country.

Pending the approval of the administrative decentralization law, the Lebanese legislation will seemingly lack

any ambitious, comprehensive and integrated plan, vision, or approach to expand or reform administrative

decentralization. In recent times, a proposal study with more “modest” objectives emerged with the only

aim of specifically amending the Municipalities’ Law (Legislative Decree No. 118 dated 30/6/1977

amended64) in a bid to modernize and reform it and fill its gaps, more than 40 years later. As of the date of

writing these lines, this proposal is the one likely to be completed (first) in the future (and not the proposal

63

Articles 49-50 and 61 of the Lebanese Municipalities’ Law.

64 Amended as per Law no. 665, dated 29/12/1997, Law dated 25/4/1999, and Law no. 316, dated 20/4/2001.


107

to expand decentralization), even though the political and security events since mid-October 2019 have

been hindering work on both until further notice.

Since mid-2019, the Parliamentary Sub-Committee for the Modernization of the Municipalities’ Law,

emanating from the Parliamentary Committee for National Defense, Interior and Municipalities, has been

working on discussing three draft laws to approve one overarching draft law that would address the most

prominent difficulties encountered by municipalities in performing their administrative, logistic and

financial duties65. Lebanon suffers from a huge aggregation of 1058 municipalities spread over the total

surface area of the country i.e. 10452 km2. This number increases in a record manner compared to other

countries in the world. Such proliferation calls for the need to control this phenomenon and to develop the

municipal resources financially and humanly. The solution lies in adopting a policy of stimulating municipal

mergers to ensure the sustainability of local authorities and enable them to carry out their development

tasks.66

This also calls for a discussion of a set of recommendations in order for the sub-committee to adopt the

most important standard conditions for the establishment of municipalities. These should ensure the

latter’s sustainability by securing a minimum amount of expected revenues based on the financial sources

stipulated in the law. Also, municipalities shall be able to fill basic jobs based on the expected financial

resources, and to efficiently provide public services. The sub-committee must review the mechanism for

establishing municipalities and defining their administrative scope. There is a special need for the law to

determine this mechanism as consisting of a reasoned decision issued by the competent minister

confirming the foregoing. The sub-committee must work according to the best criteria for annexing,

merging and separating municipalities, notably based on their geographical continuity and while proving

greater ability to employ and to provide public services, as well as financial sustainability based on the

financial resources noted in the law67.

65

What is mentioned in this paper does not express in any way the opinion of any member of parliament in the mentioned sub-committee or the opinion of the latter which is still researching, examining and discussing the content of the draft law under preparation. For more about the work of this sub-committee, see: https://www.lp.gov.lb/ViewContentRecords.aspx?id=2157 66

ي لبنان، : من أجل سلطات محلية أكير استدامة أندره سليمان، ورة الدمج البلدي ودور التاطيط المركزي للشؤون المحلية ف ي صر

.، غير منشور بعد7019ف

67.، غير منشورة7019توصيات المنظمة الدولية للتقرير عن الديمقراطية لتحديث قانون البلديات،

https://www.lp.gov.lb/ViewContentRecords.aspx?id=2157


108

The sub-committee shall take into consideration the most urgent recommendations related to the

incentives that could be adopted to join and merge municipalities. These include financial incentives

through the Independent Municipal Fund and tax exemptions. The increasing number of municipalities in

Lebanon is a negative phenomenon due to the unsustainability of their components. This is taking place

amid the lack of any debate among legal experts and in comparative law about the necessity of merging

poorly performing municipalities, as is the case in Lebanon68. In many countries of the world, including

Arab countries such as Jordan69 and Algeria70, the policy of municipal integration71 plays an increasing role

in local governance and decentralization. The merger policy is based on the inclusion of municipalities as

well as adjacent and homogeneous localities in a single municipality capable of providing better services

while having a highly efficient administrative, financial and technical apparatus capable of facing

challenges72.

It is true that the integration policy faces difficulties in some countries, such as France73 which, despite its

efforts to apply integration, opted for boosting coordination and cooperation mechanisms74 between local

groups75 namely intercommunality. However, it is also true that the policy of integration is inevitably a

trend in most developed countries, such as Japan76, Canada77, the United States of America, and many

68

ستدامة، سالف ذكرهأندره سليمان، من أجل سلطات محلية أكير ا . 69

ي الأردن عل فعاليتها الدارية والمالية من وجهة نظر رؤساء المجالس ف

، أثر دمج البلديات ف ي

دراسة ميدانية : يهامحمود عودة أبو فارس وأيمن عودة المعان . 7001، 1،العدد 33دراسات العلوم الدارية ،المجلد :مجلة الجامعة الأردنية .تحليلية

The Hashemite Kingdom of Jordan - Ministry of Tourism and Antiquities; The World Bank; Third Tourism Development Project, Secondary cities revitalization study Analysis of the municipal sector, Annex B, see page 6 among many others. 70

Fusions municipales. 71

ي للدراساتديم ي لبنانة صادر، المركز اللبنان

النجازات والعوائق والتحديات، لا تاري خ، ص: ، تجربة العمل البلدي ف . 71.

72، سابق ذكره، ص ي

.31. محمود عودة أبو فارس وأيمن عودة المعان 73

Thomas Frinault, « La réforme territoriale de 2010 : un remodelage compromis ? », Métropolitiques, 24 octobre 2012. URL : http://www.metropolitiques.eu/La-reforme-territoriale-de2010-un.html, p.1. 74

Compare: coordination and cooperation mechanisms between local groups in Tunisia, cf. 33.وص 3.مرجع مذكور أعلاه، ص، (...)المنظمة الدولية للتقرير عن الديمقراطية، دليل

75 Rémy Le Saout, op.cit., p.1; Olivier Thomas, op.cit., pp. 461-462 et 473-474 ; et : Chris Game, op.cit.

76 Institute for Comparative Studies in Local Governance, (GRIPS 2007) The Development of Municipal Mergers in Japan.

Tokyo: ICSLG, pages 9-14. 77

Christophe André and Clara Garcia, OECD Economics Department Working Papers, No. 0090, 3 June 2014, Local Public Finances and Municipal Reform in Finland, page 24; François Hulbert, Réforme municipale au canada et au Québec : la recomposition géopolitique des agglomérations (Municipal geopolitics in the recent city mergers in Canada and Quebec), Norois, n° 199, 2006/2, p. 23-43 ; Bachir Mazouz, Marcel J. B. Tardif et Jean-Michel Viola, Les fusions municipales au Québec : vers un modèle d'intégration orientée projet, Dans Gestion 2003/3 (Vol. 28), pages 48 à 57 ; And : https://www.saskatchewan.ca/government/municipaladministration/community-planning-land-use-and-development/municipal-status-and-boundarychanges/merging-municipalities.


109

European countries78 such as Portugal, Austria, the Netherlands, Belgium, Germany, Britain, Denmark,

Norway, Sweden, Iceland, Finland79, and other countries of the Organization for Economic Cooperation

and Development80. A comparison between the number of municipalities before and after the merger in a

number of these countries indicates that merger policies81 have come to fruition. According to the best

relevant international practices, merger policies are mainly based on the need to achieve economies of scale

and rationalize domestic spending by mobilizing financial and human resources as well as eliminating

duplicate administrative expenditures82.

This comes in the hopes that the primary purpose of the legislative workshop in Lebanon would be to

improve the public services provided by the municipalities to be of high quality and effectiveness, as well as

to promote local development in a balanced, sustainable and democratic manner based on the general local

interest. This is a natural and constitutional right guaranteed to human beings to entrench their right to

decent living without any discrimination, preference or exception, especially when it comes to medicine,

health, housing, learning, work, environment, security and safety83.

The legislative draft amendment is supposed to facilitate and accelerate municipal work to bypass

administrative bureaucracy, the accumulation and delay of transactions and the unjustified lack of good

coordination. The suggested amendment should also aim to address difficulties encountered by

municipalities while carrying out their administrative and logistical tasks. Meanwhile, it must seek to

strengthen the capacities of municipalities and devote their sustainability, especially in terms of financial

and human resources. In fact, the latter are expected to be compatible with the size of the responsibilities

entrusted to municipalities in order for these to be able to achieve their goals in response to local needs

and requirements, notably at the development level. The legal amendment should also aim to activate

accountability and enhance transparency in municipal work. The Municipalities’ Law will hopefully be

integrated with the administrative decentralization draft law, which is also under preparation. This requires

78

Tuukka Saarimaa and Janne Tukiainen, Politics in Coalition Formation of Local Governments, Spatial Economics Research Centre, Discussion Paper 102, March 2012, pages 2, 9-10, 26. (See also p.5). 79

Christophe André and Clara Garcia, op.cit., pages 3 and 24. 80

Idem, page 24. 81

ي وع نقاش عام حول إصلاح اللامركزية الدارية ف كة، مشر ، 41مبادرة المساحة المشي ي

31و 74-71. ،انظر ص 7011لبنان، التقرير النهان . 82

محلية أكير استدامة، سالف ذكره أندره سليمان، من أجل سلطات . 83

عة اللامركزية الدارية، "الدارة بمحلها"حلف ات اللبنانية والدولية، ويسعى ال توفير حق الحصول مويضم عددا من المنظ 7011وهو حلف تأسس عام ، شر .عل الادمات العامة


110

coordination and communication between the chairperson and members of each of the two ad hoc

parliamentary sub-committees, given that these two laws are closely related to each other.


111

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1991، 3.، ط...، المؤسسة الجامعية للدراسات1.، الوسيط في القانون الدستوري، جزهير شكر -

، بيروت7002، الأنظمة السياسية، الحلبي، محمد رفعت عبد الوهاب -

، بيروت7010، 1.، توزيع الاختصاصات الدستورية في الدولة الفيدرالية، الحلبي، طالكبيسي معمر -

، بيروت7011، 1.رئيس الدولة الفيدرالية، الحلبي، ط -، المركز القانونيعدنان الزنكنة -

، بيروت7001، 1.جدلية التنمية والديمقراطية، دار المواسم، ط: ، بلديات لبنانمحمد مراد -

. ، رشاد برس، بيروت1.، ط7002النموذج الأفضل للبنان، : ، التقسيمات الإدارية والإنتخابيةالشامي علي حسين -

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،لبنان، 7011اللامركزية الإدارية.

7010، ايار 3.دليل المواطن البلدي، ط.

- UNDP 7003، اللامركزية الإدارية والتنمية المحلية، ومجلس النواب اللبناني.

.7012، 7.، بلديات لبنان بين الرقابة والتوجيه، المجموعة الطباعية، طهادي الديك -

-7002بناء دولة الحق والقاانون، سلسالة نادوات ،جامعة سيدة اللويزة والمركز العربي لتطوير حكم القانون والنزاهة -

.7010، 1.، منشورات الحلبي الحقوقية، ط7009

نحو رؤية شمولية لتطبيق اللامركزية : ، التنظيم الإداري المحلي في لبنانلبنان-المركز الاستشاري للدراسات والتوثيق -

.1999الإدارية المحلية،

، في مؤسسة 17/17/7017في "إطلاق أعمال الجمعية وتطلعاتها" حفي لـ، المؤتمر الصجمعية اللامركزية والإنماء -

.، لبنانعصام فارس

في ضرورة الدمج البلدي ودور التخطيط المركزي للشؤون : ، من أجل سلطات محلية أكثر استدامةأندره سليمان -

.، غير منشور بعد7019المحلية في لبنان،

هل تقوم البلديات في لبنان بواجباتها؟، تقرير، المنظمة الدولية للتقرير عن الديمقراطية، تموز فؤاد جهاد مرعي، -

. 7019( يوليو)

في سريرة السلطة، " الارقام": "المرصد البلدي"، 7011نوفمبر / تشرين الثاني 10 جمعية المفكرة القانونية، -

https://mail.legal-agenda.com.

.www.lebarmy.gov.lb: كزية الإدارية والإنماء المتوازن، مجلة الدفاع الوطني، اللامرعصام سليمان -

، ندوة الفريق العرباي 7011كانون الأول 12، البلديات واللامركزية الإدارية، خالد قباني، زياد بارود، أنطوان مسرة -

.للحوار الإسلامي المسيحي

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115

- UNDP ، ،7012دليل المرأة للمجلس البلدي والإختياري.

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.7011، منتدى الشباب الاقتصادي، منبر الإصلاحيين -

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الإنجازات والعوائق والتحديات، لا تاريخ: ، المركز اللبناني للدراسات، تجربة العمل البلدي في لبنانديمة صادر -

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، 1العدد ، 33د المجل، دراسات العلوم الإدارية: مجلاااة الجامعاااة الأردنياااة. دراسة ميدانية تحليلية: نظر رؤساء المجالس فيها

7002.

.7009، 1.، الدار التقدمية، ط1913بيان للأمة العربية عن حزب اللامركزية، : ، إلى العربشكيب إرسلان -

: الدولية للتقرير عن الديمقراطيةالمنظمة -

،7012دليل السلطة المحلية في تونس.

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2/17/7012من القراءة السياسية الى التجربة التنموية، : مركزية الإدارية في لبناننحو اللا: مؤتمر ،

.بيروت

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7011.

.UNDP ،7002اللامركزية الإدارية في لبنان، مجلس النواب و، زياد بارود -

:المركز اللبناني للدراسات -

7001، 1.جماعي، الدولة والتنمية والإصلاح الإداري في لبنان، طعمل.

،7011كتيبان:

.حول اللامركزية الإدارية في لبنان*

.نحو لامركزية إدارية موسعة في لبنان*

http://www.democracy-reporting.org/


116

.mdalebanon.org ،73/9/7003مشروع قانون البلديات، نهاد نوفل، -

- MOIM, ICMA, CRI, TCGI 7011نيسان 12الإدارة المالية للبلديات في لبنان، ، خارطة الطريق لتحديث.

.12-11.، ص7011، المفكرة القانونية، آذار ...، من أجل مقاربة إدارية شاملة لمشروع اللامركزيةأندره سليمان -

.7002، القطاع العام، مجلس النواب، موسى حبيقة وسامر فواز -

سااندي طاانيوس، تعاديل : والمعلومات، مصلحة الأبحاث والدراساات، المديرية العامة للدراسات مجلس النواب اللبناني -

.71/17/7012قانون البلديات في لبنان،

(.7002بعد )، لا تاريخ محدد المؤتمر العام للبلدياتأوراق عمل -

.الحلبي 7001، نصوص وتشريعات البلديات والمخاتير،محمد رستم -

.، كتيبان وقرص مدمجلبنان يشارك -

، نيسااان 7، العاادد SIF، خصااائص السااكان والمساااكن فااي لبنااان، ادارة الإحصاااء المركاازي، ولارا بدددرنجددوى يعقددوب -

7017.

.1922تطبيق في الجمهورية العربية المتحدة، . اللامركزية والمشاكل التي تنطوي عليهاأمين المهدي، -

.حول اللامركزية الإدارية 71/2/7017، المجلس النيابي اللبناني ومؤسسة وستمنستر للديمقراطية أعمال ندوة -

.، لبنان7019حزيران إنماء متوازن أم أزمة جديدة؟، : الإدارية الموسعةاللامركزية مؤتمر التيار الوطني الحر، -

.7010، 1.، النظم الدستورية والسياسية في البلاد العربية، الحلبي، طوسيم الأحمد -

.، جدل3.، ص7019ايلول 72النهار، الفيديرالي، ... ، مجلس الجنوبغسان حجار -

.، منبر73/2/7019، 9.، لم لا التقسيم او الفيديرالية؟، النهار، صهاني عانوتي -

.، قضايا9.، ص70/2/7019، هل تنتهي وحدة اليمن؟، النهار، لطفي نعمان -

- www.lp.gov.lb اب اللبنانيالموقع الإلكتروني الرسمي لمجلس النو.

.، بيروت7019، جنسية قيد القضاء، رحلة عديمي الجنسية في أروقة المحاكم اللبنانية، جمعية رواد فرونتيرز -

: ، لبنان، ترجمه من الإنكليزية7007، 1.، دار النهار، ط1922ـ1922، تفكك أوصال الدولة في لبنان فريد الخازن -

. شكري رحيم

.7002، 1.، المجلد الثاني، الدار العربية للعلوم ناشرون، ط1990-1922، حرب لبنان عبد الرؤوف سنو -

.، العدد الرابع من مجلة المفكرة القانونية02-02-7017، التقاضي الاستراتيجي اثباتا لحق السكن، لمى كرامة -

لجنة حقوق -لنوابالحق في السكن، سلسلة الدراسات الخلفية، مجلس ا: ، الخطة الوطنية لحقوق الانسانانطوان شمعون -

. 7002الانسان النيابية وبرنامج الامم المتحدة الانمائي،

http://www.lp.gov.lb/


117

أيار 2، ندوة حول قانون الإيجارات بين المفهوم والحسنات والسيئات، ناضر كسبار، جوزف زغيب، أنطوان كرم -

.، مركز الدراسات الحقوقية للعالم العربي7011

، معهد عصام فارس، مقالات الرأي، 7019تشرين الأول 72انية، ، تأملات في انتفاضة تشرين اللبنناصر ياسين -

.بيروت

، انتفاضة تشرين وتحديات المرحلة الإنتقالية، جلسة نقاش، معهد عصام فارس والمؤسسة اللبنانية للسلم الأهلي الدائم -

.، معهد عصام فارس، بيروت7019تشرين الثاني 72

.لبنان -"الإدارة بمحلها"مناشير حملة وحلف -

: غدير العلايلي -

توزيع أموال الصندوق البلدي : قرار لمجلس شورى الدولة وحقوق البلديات المصابة بمطمر للنفايات

.نشر في العدد الخامس من مجلة المفكرة القانونية02-08-2012 المستقل لا يتم اعتباطا،

"العدد الرابع من ..اشكاليات الحاضرالتخطيط بعيدا عن : في الخطة الوطنية لحقوق الانسان" حق السكن ،

.7017مجلة المفكرة القانونية، نيسان

رابطة الجمعيات النسائية الخيرية الاسلامية لأحياء بيروت، حول في مقر 7011\2\12محاضرة في

"!ئبةيتيمة السياسات العامة الخا: الإيجارات القديمة" :في لبنان بعنوان( في حينها)قانون الإيجارات الجديد

"منبر9.، ص7019تشرين الثاني 70ثائر، النهار، " رافعة وطن ،.

،منبر9.، ص7019تشرين الثاني 79عساه يكون، النهار ،.

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